That been the case as long as I have done bidding. Depending on the project, size of it and who is calling the tender, some require a fee to get the material as it could run in the 100's of detail drawings to 1,000's of pages a spec's and info.
There is a cost to print things and someone has to pay for it. By having a cost to get material, it weeds out people who like reading things or looking at drawings to cut down on non bidders.
Depending on the project, some sub trades need everything while other subs will go to the contractor office to do the take off there or borrow a set for a few days. Contractors get more than one package as the various departments needs a set to do their take off as well figuring what sub trades are needed as well an idea what cost they could see from them.
See nothing wrong with Metrolinx asking $40 for bid material as that is a cheap price depending what been bid.
Just because a contractor takes material from X, it doesn't mean they will put in a bid for a number of reasons. I have done this a number of times.
I have seen cost of material as high as $500 a set that is either refundable to you bought it.